The object of this paper is to trace the administrative development in Roman times of the Judaeo-Samaritan territory proper, that is of Galilee, Peraea, Samaria and Judaea as delimited by Josephus, excluding the tetrarchy of Philip and the cities of the Decapolis and of the coast. My reasons for choosing this region are that it affords a highly interesting, because singularly well-documented, example of that development from a centralised bureaucratic administration to a régime of autonomous city-states, which was generally promoted by the Roman government, and that it incidentally throws some light on that subject of perennial interest,—the attitude of the Roman authorities to the Jews.
During the first century of our era, each of the four regions enumerated above formed an administrative unit. Each had its capital and was subdivided into smaller units, termed toparchies. The evidence is fullest for Judaea. Here Jerusalem was the capital, and there were eleven toparchies. The list according to Josephus is Jerusalem, Gophna, Acrabatta, Thamna, Lydda, Emmaus, Pella, Idumaea, Engaddi, Herodium and Jericho. A similar list is given by Pliny who, however, omits Idumaea and Engaddi and calls Pella Bethleptapha.